An Act to Combat Poverty and Social Exclusion (R.S.Q., chapter L 7)
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An Act to Combat Poverty and Social Exclusion (R.S.Q., chapter L‐7) Highlights of the Act and Its Application June 2009 Today, the links between poverty and health are Québec sans pauvreté (Collective for a Poverty well-established (Phipps, 2003) and the resulting Free Québec) (formerly the Collectif pour une loi inequalities in health have proven to be persistent sur l’élimination de la pauvreté − Collective for a (Whitehead & Dahlgren, 2007). Indeed, the Law on the Elimination of Poverty), which carried population groups with the worst health status are out a widespread process of public consultation materially underprivileged and socially excluded and deliberation (Noël, 2002, p.101). (De Koninck et al., 2008), leading many analysts to single out poverty as one of the primary The Act is enabling legislation, meaning that it is determinants of health. a legislative text that sets out general principles and gives the Government the authority to decide In 2002, the Government of Québec adopted An how these principles will be applied (Ninacs, Act to Combat Poverty and Social Exclusion Béliveau & Gareau, p.10). As such, it provides For up-to-date knowledge relating to healthy public policy (R.S.Q., c. L-7). This legislation is the first of its the Government with guidelines for implementing kind in North America. the measures required to reach its objectives with regard to poverty and social exclusion (MSSS, This series of background papers presents the 2008). history that preceded this legislation, and highlights key elements of its application. This paper addresses the following questions: Formulation of An Act to Combat • How is An Act to Combat Poverty and Social Poverty and Social Exclusion Exclusion formulated and applied? Briefing Note • What impact has this legislation had on In its Preamble, the Act refers to Québec’s poverty and social exclusion in Québec? Charter of Human Rights and Freedoms. Also mentioned are: • The imperative to enhance the social, cultural Introduction and economic development of all human beings; An Act to Combat Poverty and Social Exclusion was passed unanimously on December 13, 2002 • The harmful effects of poverty and social in Québec’s National Assembly (the provincial exclusion on social and economic legislature). It marked the beginning of a National development; Strategy to Combat Poverty and Social Exclusion, • The fact that people living in poverty are the in the aim that Québec would progressively join first to act to improve their situation; the ranks of industrialized States with the lowest poverty rates, by 2013 (Ministère de l’Emploi et • The desire of Québec society as a whole to de la Solidarité sociale [MESS], 2002). act in a concerted manner and to pursue a course of action to combat poverty and social The first legislation of its kind in North America, exclusion (An Act to Combat Poverty and this law is innovative because it makes the Social Exclusion, 2002). reduction of poverty and social exclusion an explicit government priority (Noël, 2002, p.101). The Act comprises 70 sections, divided into 8 chapters. Highlights of the Act are outlined The origins of the Act are particularly striking, in below. that it is the direct result of broad-based, • Object: “The object of this Act is to guide the grassroots mobilization by community Government and Québec society as a whole organizations involved in the Collectif pour un towards a process of planning and
2 Briefing Note An Act to Combat Poverty and Social Exclusion (R.S.Q., chapter L-7): Highlights of the Act and Its Application implementing actions to combat poverty, prevent The Act stipulates that the Government must: its causes, reduce its effects on individuals and • Submit an action plan that sets goals that must families, counter social exclusion and strive be reached, within sixty days of the Act coming towards a poverty-free Québec” (An Act to into effect (sections 13–21). Combat Poverty and Social Exclusion, 2002, Section 1). • Create a Comité consultatif de lutte contre la pauvreté et l’exclusion sociale (Advisory • Definition of poverty: “… the condition of a committee on the prevention of poverty and social human being who is deprived of the resources, exclusion) to advise the Minister on actions to be means, choices and power necessary to acquire taken within the scope of the national strategy to and maintain economic self-sufficiency or to combat poverty and social exclusion (sections facilitate integration and participation in society” 22–34). (An Act to Combat Poverty and Social Exclusion, 2002, Section 2). This definition is innovative in • Establish an Observatoire de la pauvreté et that it goes beyond the economic aspects of l’exclusion sociale (Observatory on poverty and poverty to include its social dimensions social exclusion) to gather, compile, integrate, (W. Ninacs, personal communication, January 29, analyze and disseminate information on poverty 2009). and social exclusion (sections 35–45). • Five axes for action are laid out in section 7: • Establish the Fonds québécois d’initiatives 1. Preventing poverty and social exclusion, with sociales, a fund for social initiatives dedicated to a focus on developing the potential of the financing of initiatives to combat poverty and individuals; social exclusion (sections 45–57). 2. Strengthening the social and economic safety • Lastly, the Act sets out standards for reporting net; and accountability (sections 58–63). 3. Promoting access to employment and increasing the attractiveness of work; 4. Promoting the involvement of society as a Application of An Act to Combat whole; Poverty and Social Exclusion 5. Ensuring consistent and coherent intervention at all levels (An Act to Combat Poverty and ACTION PLAN Social Exclusion, 2002, Section 7). On April 2, 2004, the Government unveiled the • Power to take initiative. The Act empowers the definitive version of the action plan entitled Ministère de l’Emploi et de la Solidarité sociale Reconciling Freedom and Social Justice: (MESS) to take initiative and play an advisory role Government Action Plan to Combat Poverty and to the Government on issues concerning the fight Social Exclusion (Ministère de l’Emploi, de la against poverty and social exclusion (An Act to Solidarité sociale et de la Famille [MESSF], Combat Poverty and Social Exclusion, 2002, 2004).This plan was solidly anchored in measures Section 19). announced a few days earlier in the 2004-2005 provincial budget, which allocated 2.5 billion dollars • Impact clause. Section 20 of the Act calls for over five years (2004-2009) to carry out the action from any minister who estimates that its provisions of the Act (Collin, 2007). The Action Plan legislative or regulatory proposals could have is comprised of four axes and 47 measures. The four direct and significant impacts on the incomes of axes as well as various measures are listed below. persons or families who, according to the indicators retained under the Act, are living in Axis 1: Improve the lives of people living in poverty. These ministers are required to give an poverty account of any foreseeable impacts when • Enhance unemployment insurance to meet presenting proposals to the Government. commitments under the Act • Improve the situation of low-income workers by promoting work • Facilitate employment searching by increased support Tel: 514 864-1600 ext. 3615 • Fax: 514 864-5180 • Email: ncchpp@inspq.qc.ca • www.ncchpp.ca
Briefing Note 3 An Act to Combat Poverty and Social Exclusion (R.S.Q., chapter L-7): Highlights of the Act and Its Application • Create a particular support system for those with OBSERVATOIRE DE LA PAUVRETÉ ET L’EXCLUSION significant employment limitations SOCIALE • Improve access to decent, affordable housing This observatory was replaced by the Centre • Ensure access to sufficient quantities of good d’études sur la pauvreté et l’exclusion sociale quality foods (Centre for studies on poverty and social exclusion). • Provide access to medication through a prescription drug policy CENTRE D'ÉTUDES SUR LA PAUVRETÉ ET L'EXCLUSION SOCIALE (CEPE) Axis 2: Prevent poverty and social exclusion by Implemented in the spring of 2005, the CEPE is promoting people’s potential linked to the Ministère de l’Emploi et de la Solidarité • Support children and their families to ensure sociale (MESS). This Centre is coordinated in equal opportunity collaboration with an executive committee, which is • Contribute to the success and integration of comprised of people from academic, government young people and research sectors, as well as of people who work • Develop an integrated continuum of services for with those living in situations of poverty. The CEPE’s young people mandate is to collect, analyse and diffuse • Fight the social exclusion of seniors information, particularly statistical data, pertaining to poverty, social exclusion and social inequalities Axis 3: Involve society as a whole (CEPE, 2007). Using indicators chosen by the MESS, the CEPE surveys the social and economic • Develop tools for solidarity with underprivileged situation of people living in poverty in the aim of communities measuring change, following the application of An • Support local and regional initiatives Act to Combat Poverty and Social Exclusion. • Support the collective fight against poverty and social exclusion FONDS QUÉBÉCOIS D’INITIATIVES SOCIALES This fund was instituted in 2002 to support various Axis 4: Ensure consistent, coherent action local and regional strategies to combat poverty and • Develop tools to coordinate efforts, involve social exclusion. Currently, the Fund contributes to citizens and measure progress programmes in various municipalities that target • Step up discussions and work in collaboration priority intervention zones. It also contributes to food with the federal government security programs including the Québec Breakfast Club, as well as to work-integration programs for • Adapt action to the needs of Aboriginal nations people who are isolated from the job market (MESS, (MESSF, 2004) 2007a). COMITÉ CONSULTATIF DE LUTTE CONTRE LA PAUVRETÉ ET L’EXCLUSION SOCIALE (CCLP) Impact of the Act The work of the advisory committee began in March of 2006. The 17 members appointed by the It is still too early to judge the effects of An Act to Government are representatives of organizations Combat Poverty and Social Exclusion (Noël, 2008). involved in the fight against poverty and social Generally speaking, this Act has been welcomed exclusion, people living in poverty, employers’ favourably and considered to be a political groups, unions, municipal and community groups, innovation (Noël, 2004, p.511). That being said, its and other sectors of civil society (CCLP, 2007a). The interpretation and application have been closely mandate of this committee is to advise the monitored by various groups, who criticize the Government on its actions implemented under the “piecemeal” rather than broad approach taken by the Act, as well as to monitor government policies that government, as well as the government’s inaction on have an impact on poverty and social exclusion many fronts, in the years following the adoption of (CCLP, 2007b). the action plan (W. Ninacs, personal communication, January 29, 2009). Community groups fear “the transformation of the battle against poverty into a battle against the poor, a return to square one with Tel: 514 864-1600 ext. 3615 • Fax: 514 864-5180 • Email: ncchpp@inspq.qc.ca • www.ncchpp.ca
4 Briefing Note An Act to Combat Poverty and Social Exclusion (R.S.Q., chapter L-7): Highlights of the Act and Its Application regards to the prejudices from which the law had elsewhere in Canada, with the exception of begun to dissociate itself” (Ninacs et al., 2003, p.15). Newfoundland and Labrador (where there is also a governmental anti-poverty strategy) (Noël, 2008; The Individual and Family Assistance Act constitutes Fortin, 2008). one of the main criticisms levelled by the Collective for a Poverty-Free Québec and by other anti-poverty The Ministère de l’Emploi et de la Solidarité sociale groups and organizations. Adopted in July 2005, this highlights measures and achievements with regards Act was presented as part of An Act to Combat to the Act: Poverty and Social Exclusion. However, it was • Four raises in minimum wage since the Action condemned for twisting the spirit of the anti-poverty Plan was first implemented, starting at $7.30 in legislation through its stigmatization of the concept of 2004 and reaching $9.50 by 2010; aid in Québec’s public assistance system (Collectif pour un Québec sans pauvreté, 2004; Ulysse, 2007, • Increases to the amounts promised in April 2004 p.56). for social housing, in order to provide 20,000 new low-cost or affordable housing units by 2009; The Collective also considers that, despite An Act to • Free medication for over one million people in Combat Poverty and Social Exclusion, the vulnerable financial situations, under the Government of Québec has “abandoned” people government’s new medication policy; living alone (Collectif …, 2008). Statistics Canada data from 2005 (cited in CEPE, 2008) does, in fact, • Greater participation in job-entry measures: since indicate that people living alone, as well as single- March 2003, participation has grown by 10% parent families, are more at risk of low income than among people from cultural communities and couples or two-parent families (CEPE, 2008). visible minorities, by 20% among people aged 50 Indeed, in 2005 the low-income rate was 35% for or over, and by over 12% among people with people living alone, compared to 7% for economic handicaps (MESS, 2007b). families 1 (CEPE, 2008). People living alone do not benefit from the same premium incentives to work as adults within families or as handicapped people, Conclusion among other benefits (Roy, Fréchet & Savard, 2008). The situation of single-parent families has improved, An Act to Combat Poverty and Social Exclusion has but remains far more fragile (poverty rate of 20%) placed Québec at the forefront of the fight against than for other types of economic families (Roy et al., poverty in Canada (Roy et al., 2008). However, 2008). Furthermore, low-income families live, on despite the innovative nature of this legislation, average, 30% below the poverty line. 11.5% of the population of Québec - 875 000 people - still live below the poverty line (Fortin, 2008). In its own assessment of the Act and its Government Consequently, efforts to eliminate poverty are Action Plan to Combat Poverty and Social Exclusion, ongoing. The work ahead will include documenting the Government of Québec has highlighted the the implementation of the Act and assessing its positive impact of the measures that have been impacts. Since poverty is a significant determinant of taken. Combined with other factors, such as health, we can expect that the public health economic growth, the Government believes that community will take an active role in these these measures have contributed to an overall undertakings. alleviation of poverty in Québec, and have “helped improve Quebecers’ living conditions, particularly those of families” (MESS, 2007b, p.2). Indeed, References various authors maintain that the economic situation of families living in poverty is better in Québec than An Act to combat poverty and social exclusion. R.S.Q., chapitre L-7 (2002). Updated to May 10, 2010. Retrieved May 2010 from: http:// 1 According to Statistics Canada: “Economic family refers to a www2.publicationsduquebec.gouv.qc.ca/dyna group of two or more persons who live in the same dwelling micSearch/telecharge.php?type=2&file=%2F% and are related to each other by blood, marriage, common-law or adoption. A couple may be of opposite or same sex. Foster 2FL_7%2FL7_A.htm. children are included.” http://www.statcan.gc.ca/concepts/ definitions/economic_family-familles_economiques-eng.htm. Tel: 514 864-1600 ext. 3615 • Fax: 514 864-5180 • Email: ncchpp@inspq.qc.ca • www.ncchpp.ca
Briefing Note 5 An Act to Combat Poverty and Social Exclusion (R.S.Q., chapter L-7): Highlights of the Act and Its Application Centre d’étude sur la pauvreté et l’exclusion. (2007). De Koninck, M., Pampalon, R., Paquet, G., Clément, Origine et fonctions. Québec City: M., Hamelin, A-M., Disant, M-J., et al. (2008). Gouvernement du Québec. Retrieved June Santé : pourquoi ne sommes-nous pas 2009 from: http://www.cepe.gouv.qc.ca/ égaux? Comment les inégalités sociales de presentation. santé se créent et se perpétuent. Québec City: Institut national de santé publique du Québec. Collin, C. (2007). Poverty Reduction Strategies in Retrieved June 2009 from: http://www.inspq. Québec and in Newfoundland and Labrador. qc.ca/pdf/publications/794_Inegalites_sociales Ottawa: Library of Parliament. _sante.pdf. Collectif pour un Québec sans pauvreté. (2008). Fortin, P. (2008, December 20). 40 % moins de Bilan de la quatrième année du Plan d’action pauvres. La Presse. Retrieved June 2009 gouvernemental en matière de lutte contre la from: http://www.cyberpresse.ca/opinions/ pauvreté et l’exclusion sociale. Éliminer la forums/200812/20/01-812192-40-moins-de- pauvreté : il faut faire plus… et mieux. pauvres.php. Retrieved June 2009 from: http://www.cnw.ca/ fr/releases/archive/November2008/03/c4275.h Labrie, V. (2008). Faisons-le et ça se fera! Histoire tml. d’une affiche et d’un mouvement citoyen vers un Québec sans pauvreté. In: Tenir parole : Collectif pour un Québec sans pauvreté. (2004). Ça trajectoires et paroles citoyennes en marge suffit les préjugés! Bilan du Collectif pour un d’une affiche, ed. Marie-Claude Rose, Collectif Québec sans pauvreté des consultations de la pour un Québec sans pauvreté. Québec City: Commission des affaires sociales sur la Projet Presses de l’Université Laval. de loi 57 – Loi sur l’aide aux personnes et aux familles. Retrieved June 2009 from: http:// Michaud, M., Gagnon, F. & Gauthier, J. (2006). Le www.pauvrete.qc.ca/article.php3?id_article=2 Plan d’action gouvernemental en matière de 38. lutte contre la pauvreté et l’exclusion sociale. Étude de cas. Québec City: Groupe d’étude Comité consultatif de lutte contre la pauvreté et sur les politiques publiques et la santé. l’exclusion sociale. (2007a). Historique. Québec City: Gouvernement du Québec. Ministère de l’Emploi et de la Solidarité sociale Retrieved June 2009 from: http://www.cclp. (MESS). (2008). Loi. Retrieved June 2009 gouv.qv.ca/historique. from: http://www.mess.gouv.qc.ca/grands- dossiers/lutte-contre-la-pauvrete/loi_en.asp. Comité consultatif de lutte contre la pauvreté et l’exclusion sociale. (2007b). Collectivement MESS. (2007a). Rapport d’activité 2006-2007 du plus riches de moins de pauvreté, nous serons fonds québécois d’initiatives sociales. Québec mieux… Rapport d’activité du Comité City: Gouvernement du Québec Retrieved consultatif de lutte contre la pauvreté et June 2009 from: http://www.mess.gouv.qc.ca/ l’exclusion sociale 2006-2007. Québec City: publications/index.asp?categorie=0104203#lis Gouvernement du Québec, 2007b. http:// te. www.cclp.gouv.qc.ca/publications/index.asp?c MESS. (2007b). Combating Poverty and Social ategorie=1503101#liste. Exclusion: A priority for Québec. Québec City: Commission on the Social Determinants of Health. Gouvernement du Québec. Retrieved June (2007). A Conceptual Framework for Action on 2009 from: http://www.mess.gouv.qc.ca/ the Social Determinants of Health. Draft: publications/pdf/ADMIN_depliant_bilan_lutte_ Discussion paper for the Commission on pauvrete_en.pdf. Social Determinants of Health. Retrieved June MESS. (2002). The Will to Act The Strength to 2009 from: http://www.who.int/social_ Succeed: National Strategy to Combat Poverty determinants/resources/csdh_framework_acti and Social Exclusion. Policy Statement. on_05_07.pdf. Québec City: Gouvernement du Québec. Retrieved June 2009 from: http://www.mess. gouv.qc.ca/grands-dossiers/lutte-contre-la- pauvrete/index_en.asp. Tel: 514 864-1600 ext. 3615 • Fax: 514 864-5180 • Email: ncchpp@inspq.qc.ca • www.ncchpp.ca
6 Briefing Note An Act to Combat Poverty and Social Exclusion (R.S.Q., chapter L-7): Highlights of the Act and Its Application Ministère de l’Emploi, de la Solidarité Sociale et de la Roy, M-R., Fréchet, G. & Savard, F. (2008). Le Famille. (2004). Reconciling Freedom and Québec, à l’avant-garde de la lutte contre la Social Justice: A challenge of the Future. pauvreté au Canada. Policy Options Government Action Plan to Combat Poverty. Politiques, 29(4), 57–62. Québec City: Gouvernement du Québec. Ulysse, P-J. (2007). La lutte contre la pauvreté et Retrieved June 2009 from: www.mess.gouv. l’exclusion. Les paradoxes des stratégies qc.ca/telecharger.asp?fichier=/publications/pdf québécoises. Informations sociales, 7(143), /ADMIN_plan-action-lutte-pauvrete_en.pdf. 54–63. Ninacs, W., Béliveau, A-M., & Gareau, F. (2003).The United Nations: Department of Economic and Social Collective for a Poverty-Free Québec: A Case Affairs. (1995). Copenhagen Declaration on Study. Ottawa: The Caledon Institute of Social Social Development. Retrieved June 2009 Policy. Retrieved June 2009 from: http:// from: http://www.un.org/documents/ga/ www.pauvrete.qc.ca/IMG/pdf/Ninacs- conf166/aconf166-9.htm. The_Collective_for_a_Quebec_Free_from_Po verty.pdf. Whitehead, M. & Dahlgren, G. (2007). Concepts and Principles for Tackling Social Inequities in Noël, A. (2008, April 17). Éliminer la pauvreté : ce Health: Levelling up, Part 1. Denmark: que peuvent faire les gouvernements. Paper Regional Bureau of the World Health presented at: Breakfast on the Hill. Ottawa: Organisation for Europe. Retrieved June 2009 Canadian Federation for the Humanities and from: http://www.euro.who.int/document/ Social Sciences. e89383.pdf. Noël, A. (2004). Lutte contre la pauvreté ou lutte contre les pauvres? In M. Venne (Ed.), Web sites L’annuaire du Québec 2005 (pp. 504-13). Centre d’étude sur la pauvreté et l’exclusion: http:// Montreal: Fides. www.cepe.gouv.qc.ca/. Noël, A. (2002). Une loi contre la pauvreté : La Collective for a Poverty-Free Québec: http:// nouvelle approche québécoise de lutte contre www.pauvrete.qc.ca. la pauvreté et l’exclusion sociale. Lien social et politiques, 48, 101–114. Comité consultatif de lutte contre la pauvreté et l’exclusion sociale: http://www.cclp.gouv.qc.ca/ Phipps. S. (2003). The Impact of Poverty on Health. index_en.asp. Ottawa: Canadian Institute for Health Information. Retrieved June 2009 from: http:// Ministère de l’Emploi et de la Solidarité secure.cihi.ca/cihiweb/products/CPHIImpacton sociale: http://www.mess.gouv.qc.ca/Index_en Poverty_e.pdf. .asp. Poitras, P. (2007). Loi québécoise visant à lutter contre la pauvreté et l’exclusion sociale. Synthèse descriptive. Working document prepared for the National Collaborating Centre for Healthy Public Policy (NCCHPP). Tel: 514 864-1600 ext. 3615 • Fax: 514 864-5180 • Email: ncchpp@inspq.qc.ca • www.ncchpp.ca
June 2009 Authors: Élisabeth Mercier and Anika Mendell, National Collaborating Centre for Healthy Public Policy ACKNOWLEDGMENTS The NCCHPP gratefully acknowledges the helpful comments of Alain Noël, William Ninacs and Catherine Ford. The National Collaborating Centre for Healthy Public Policy (NCCHPP) seeks to increase the expertise of public health actors across Canada in healthy public policy through the development, sharing and use of knowledge. The NCCHPP is one of six Centres financed by the Public Health Agency of Canada. The six Centres form a network across Canada, each hosted by a different institution and each focusing on a specific topic linked to public health. In addition to the Centres’ individual contributions, the network of Collaborating Centres provides focal points for the exchange and common production of knowledge relating to these topics. The National Collaborating Centre for Healthy Public Policy is hosted by the Institut national de santé publique du Québec (INSPQ), a leading centre in public health in Canada. Production of this document has been made possible through a financial contribution from the Public Health Agency of Canada through funding for the National Collaborating Centre for Healthy Public Policy (NCCHPP). The views expressed herein do not necessarily represent the views of the Public Health Agency of Canada. Publication N°: 1185 This document is available in its entirety in electronic format (PDF) on the Institut national de santé publique du Québec website at: http://www.inspq.qc.ca and on the National Collaborating Centre for Healthy Public Policy website at: www.ncchpp.ca. La version française est disponible sur les sites Web du Centre de collaboration nationale sur les politiques publiques et la santé (CCNPPS) au www.ccnpps.ca et de l’Institut national de santé publique du Québec au www.inspq.qc.ca. Reproductions for private study or research purposes are authorized by virtue of Article 29 of the Copyright Act. Any other use must be authorized by the Government of Québec, which holds the exclusive intellectual property rights for this document. Authorization may be obtained by submitting a request to the central clearing house of the Service de la gestion des droits d’auteur of Les Publications du Québec, using the online form at http://www.droitauteur.gouv.qc.ca/en/autorisation.php or by sending an e-mail to droit.auteur@cspq.gouv.qc.ca. Information contained in the document may be cited provided that the source is mentioned. st LEGAL DEPOSIT – 1 QUARTER 2011 BIBLIOTHÈQUE ET ARCHIVES NATIONALES DU QUÉBEC LIBRARY AND ARCHIVES CANADA ISBN: 978-2-550-60706-9 (FRENCH PRINTED VERSION) ISBN: 978-2-550-60707-6 (FRENCH PDF) ISBN: 978-2-550-60708-3 (PRINTED VERSION) ISBN: 978-2-550-60709-0 (PDF) © Gouvernement du Québec (2011)
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